11 Introduction ging dams and intense storms Awith subsequent floods have led to at least ten structural failures at Iowa dams in the past three years. This presents serious challenges, but also provides a chance to correct a legacy of problems not anticipated three to four generations ago when many small dams were constructed. New frameworks for low-head dam mitigation provide exciting opportunities to usher in a new legacy of enjoyment, respect, and care for the navigable waters of Iowa. Solving Dam Problems: Iowa’s 2010 Plan for Dam Mitigation provides an updated inventory, new naturalistic approaches to enhance rivers in dam mitigation projects, perspectives on flood reduction, and cost effective methods of reducing deaths at dams. 5 companion documents to this plan were 1a. The Role of Iowa’s 2010 developed: 1. A fully illustrated manual Develop- Plan for Dam Mitigation ing Water Trails in Iowa for water trails developers, in cluding planning guid- ance, standardized signage design, and incorporation of stream restoration and stormwater management concepts in ac- cess construction. 2. The state water trails plan Iowa Water Trails: Connecting People, Water and Resources, documenting the historic and present day importance of Iowa’s In 2008, the Iowa Department of Natural navigable waters, with comparisons of Resources was instructed to develop state- relevant data and strategies for adding wide plans for the newly formed water trails value to Iowa’s system. low-head dam public hazard programs. The low-head dam public hazard program Elements were to include an inventory of within the Iowa DNR was established in low-head dams, various mitigation design 2008 to reduce fatalities at traditionally templates and construction guidelines for designed dams. The Iowa DNR has a working in and along rivers and recommen- separate dam safety program tasked with dations for volunteers, communities, water assuring Iowa’s dams are constructed trail developers, and dam owners. Experts and maintained per a hazard classification in engineering, stream restoration, and system based on risks downstream of the fisheries were consulted to develop rec- dam; however, this program does not spe- ommendations for alternatives that create cifically address the hazard posed by low fewer life-cycle problems than traditionally head dams to recreational users. Reducing designed low-head dams. what to date have been more numerous In July of 2010, as this plan was being final- Iowa deaths due to traditional “low-head” ized, a catastrophic breach occured at the dam design was a main consideration in Lake Delhi Dam. Techniques outlined in this creating the newer public hazard program. plan were put to use in Maquoketa riverbed This plan broadens the set of goals for stabilization projects necessitated by the mitigation to improve river ecology and failure of that large dam. Lessons learned enhanced recreation. in that disaster have been incorporated into Taken together, this plan responds to this plan. increased demand in Iowa for safer water- The resulting 2010 dam mitigation plan re- based recreation, improving water quality, lates the function and historical importance conserving Iowa’s aquatic resources, and of dams to today. The plan also inventories developing opportunities to enhance resil- Iowa’s dams, provides design templates ience of aquatic life by improving stream for mitigating hazards and improving fish connectivity. Together, these factors are passage and lays out a general statewide expected to contribute to economic vitality strategy and action steps to improve river and a higher quality of life for Iowans. • connectivity over the next ten years. Two 6 1b. The Vision for Low-Head Dam Mitigation Iowa’s vision was developed survey, and a mail survey of the owners of dams. should be considered. Habitat improvements were considered valid impetus for mitigation, and physical Nearly 1,000 Iowans participated in an internet-based mitigation at deteriorating dams was considered most using a thoughtful process survey developed by Iowa State University’s Depart- appropriate. Only 10 percent of research participants ment of Landscape Architecture to construct strate- involving thousands of Iowans. indicated they were strongly in favor of dam removal gies and goals for water trail and dam mitigation Social assessment tools developed both through as a blanket solution to dam problems. public input meetings and questionnaires show evolv- programs. Stakeholders included anglers, paddlers, ing attitudes about dams. Protecting and restoring natural resource agency staff, economic develop ment Mailed surveys and telephone interviews implement- rivers and watersheds and reducing the number of staff, and the general public. This survey helped set ed by Iowa State University’s Center for Agriculture dam-related drownings were the top priorities identi- early direction when all stakeholder groups clearly and Rural Development (CARD) tracked Iowan’s fied with various tools, including internet stakeholder articulated that a balanced mix of safe avoidance, river use and preferences from 4,775 participants. surveys, a statewide mail survey, a livery owners mail warning signage, and modification or dam removal CARD estimates that nearly half of all Iowans logged 7 at least one trip to an Iowa river in the past year. Economic effect estimates of river use patterns will IOWA’S FUTURE FOR DAM MITIGATION be developed in the near future. WILL … Numerous experts in stream restoration, engineer- ... respond to aging dam infrastructure ing, environmental education, law enforcement, fisheries, aquatic invasive species, water quality, ... be grounded in listening to local interests and dam public land management, tourism, and economic de- owner concerns velopment also contributed insights and knowledge. … strive to reduce dam-related deaths through Statewide committee members provided insight into education, warning signage, guidelines for access the vision. Iowa’s river corridors appear to be both highly val ued and well-used according to all sets of areas near dams, and structural mitigations such as studies. removal or rapids conversions Iowa’s vision for the future of major river dam mitiga- … balance ecological benefits of fish passage with the tion links multiple benefits and avoids setting up need to block or slow the spread of invasive species conflicts. It’s about the importance of listening to and at some of the largest dams communicating with Iowans, and putting the spotlight on problem solving. It’s about improving recreation, … consider recreational benefits from new features aqatic habitats and water quality, and it’s about find- created at former dam sites ing economic opportunities. The vision is also about rekindling the connection between people’s interac- … blend benefits to aquatic species, angler access, tions with the landscape and their respect and under- recreational safety, navigation improvements, standing of resource conditions and functions. • economic development, and tourism when prioritizing structural dam mitigations 8 1c. History of Iowa Dams: Why They Are Here The first recorded dam on an Iowa stream was built on needed for construction. Cedar Falls, Cedar Rapids, the Yellow River in 1829 to refurbish Fort Crawford with and Iowa Falls are all named after natural river fea- newly sawn lumber for its rotting palisade. For a time, tures. Immediate negative effects to upstream fisheries a young lieutenant named Jefferson Davis (who later were observed (see Chapter 3). led the Confederacy during the Civil War) operated the sawmill. Throughout the 1830s and throughout the The first hydropower dams settlement of Iowa, the milling industry relied primar- Water-powered mills declined as the economic base ily on Iowa’s rivers. Most of those created a head of shifted throughout the late 1800s from wheat produc- water with small rock or crib dams. These dams helped tion to corn, cattle, and hogs. Dams resurged in impor- power grist, woolen, or saw mills. According to the first tance in the early 1900s with the invention of the light census in 1840, there were 118 mills operating in Iowa bulb and other devices. Some old mill dams were re- employing 154 settlers. “By 1870 the Federal census purposed to hydroelectric generation, while other dams enumerated 502 flour and gristmills and 545 saw- were newly constructed to generate electricity. Dur- mills — or more than a thousand mills in the Hawkeye ing the same time, rapids on the Mississippi River at 1930s dams State” (Petersen, 1941:20). There were as many as Keokuk and Rock Island were considered navigational 40 mills alone on the Upper Iowa River (Knudson, 48), problems, and plans were laid for the first locks and In the 1930s, about 50 dams were constructed, most and as many as 80 operating along Des Moines River dams. The Rock Island rapids was submerged when of them in the name of conservation (despite earlier (Swisher, 1940:14) by the 1880s. (Swisher, 1940: 15- the Moline Lock opened in 1907, and the Des Moines observations that fishing declined for upstream com- 16). Mill operation reached its zenith in the 1890s. rapids at Keokuk was submerged 1913 with a dam that munities) and work development. Construction of some also became one of the world’s largest hydroelectric dams employed work-hungry men through the Civilian Many of Iowa’s natural rapids and falls were preferred facilities of the time. As floods were known to regu- Conservation Corp, the Work Progress Administration, places to build dams because fewer materials were larly wipeout rock-and-crib style dams, dam owners and the state’s Civil Works Administration (CWA). Lo- began slathering concrete cal conservation leagues also built a number of dams caps over older dams, in Iowa. These projects provided temporary work for using Portland cement scores of otherwise unemployed Iowans. However, the as a primary material for purpose of the dams themselves was not economic. new constructions. Thus, Many were called “beauty dams” and others were the“low-head” style of dam billed as “recreational improvements” at places that was born in Iowa.